The PEOPLE of the State of Illinois, Plaintiff-Appellee,
v.
Edward RODRIGUEZ, Defendant-Appellant.
Appellate Court of Illinois, Second District.
*708 Donald J. Ramsell, Christopher B. Klis, Ramsell & Armamentos, Wheaton, for Edward Rodriquez.
Joseph E. Birkett, Du Page County State's Attorney, Wheaton, Martin P. Moltz, Deputy Director, David A. Bernhard, State's Attorneys Appellate Prosecutor, Elgin, Kenneth L. Gillis, Chicago, for the People.
Justice GILLERAN JOHNSON delivered the opinion of the court:
The defendant, Edward Rodriguez, appeals from the October 11, 2001, order of the circuit court of Du Page County granting the State's motion to strike his petition to rescind the statutory summary suspension of his driver's license. On appeal, the defendant contends that the trial court erred in determining that his petition to rescind was untimely. We affirm.
On February 25, 2001, the defendant was arrested and subsequently charged with driving under the influence of alcohol (DUI) in violation of section 11-501 of the Illinois Vehicle Code (the Vehicle Code) (625 ILCS 5/11-501 (West 2000)). The defendant was stopped after a police officer observed him driving erratically. Because he refused to submit to chemical testing, the defendant's driver's license was summarily suspended for at least six months pursuant to section 11-501.1 of the Vehicle Code (625 ILCS 5/11-501.1 (West 2000)). On March 2, 2001, the defendant filed a timely petition to rescind the summary suspension. See 625 ILCS 5/2-118.1 (West 2000). However, the defendant voluntarily dismissed his petition on May 2, 2001. On September 18, 2001, the defendant refiled his petition to rescind the summary suspension. The State filed a motion to strike the defendant's petition, *709 arguing that it was untimely because it had not been brought within 90 days of his summary suspension as was required by section 2-118.1 of the Vehicle Code. In response, the defendant argued that section 13-217 of the Code of Civil Procedure (the Civil Code) (735 ILCS 5/13-217 (West 2000)) allowed him one year from the date of the voluntary dismissal to refile his petition. Following a hearing, the trial court rejected the defendant's argument and granted the State's motion to strike his petition. The defendant thereafter filed a timely notice of appeal.
The issue presented in this case is whether the defendant is permitted to refile his petition to rescind his summary suspension beyond the 90-day period prescribed by section 2-118.1(b) of the Vehicle Code (625 ILCS 5/2-118.1(b) (West 2000)). As this issue involves a purely legal question, we review the trial court's decision de novo. Clay v. Kuhl,
Section 11-501.1 of the Vehicle Code (625 5/11-501.1 (West 2000)) authorizes the Secretary of State to summarily suspend the driving privileges of a person arrested for DUI. Due to the fact that it often takes a long time for the State to prosecute impaired drivers and to remove their drivers' licenses, the legislature has enacted a system separate from the criminal proceeding wherein a defendant may petition to rescind his summary suspension. See People v. Moore,
The right of a driver to request a hearing to challenge the summary suspension of his driving privileges is established through section 2-118.1(b) of the Vehicle Code. This section provides in pertinent part:
"Within 90 days after the notice of statutory summary suspension [is] served * * *, the person may make a written request for a judicial hearing in the circuit court of venue." 625 ILCS 5/2-118.1(b) (West 2000).
Section 2-118.1 is silent as to whether a defendant may refile a petition that he or she has voluntarily dismissed, and if so, how long he or she has to refile the petition. However, section 2-118.1(b) provides that the "hearings shall proceed in the court in the same manner as in other civil proceedings." 625 ILCS 5/2-118.1(b) (West 2000). Generally, in other civil proceedings, a party has the right to refile within one year a claim that he has voluntarily dismissed. See 735 ILCS 5/13-217 (West 2000). Thus, the issue becomes whether this right to refile also extends to one's right to challenge his summary suspension pursuant to section 2-118.1(b) of the Vehicle Code.
The principles governing statutory interpretation are well settled. The fundamental principle of statutory construction is to ascertain and give effect to the intent of the legislature. Lieb v. Judges' Retirement *710 System,
Moreover, when the legislature enacts legislation to remedy an imperfection in the law, such remedial legislation should be construed liberally to effectuate its purposes. See Town of Benton v. City of Zion,
Applying these principles, we conclude that section 2-118.1 of the Vehicle Code is ambiguous because it is susceptible to two conflicting interpretations. First, section 2-118.1 could be interpreted such that one cannot refile a petition to challenge a summary suspension after the 90 days have lapsed from when he received notice of the summary suspension. From reading section 2-118.1 of the Vehicle Code in its entirety, as we are required (see Town of Benton,
Based on the plain language of the statute, it appears that a defendant could not delay or postpone the rescission hearing for potentially one year by refiling a petition after previously dismissing it. If the defendant could, it would seem to undermine and frustrate the legislative intent of section 2-118.1 of the Vehicle Code that the proceedings be resolved in an expeditious manner. See Moore,
Nonetheless, we also believe that one could interpret section 2-118.1(b) of the Vehicle Code as allowing one to refile a petition to challenge his summary suspension even though 90 days have lapsed from when he received notice of the summary suspension. As noted above, section 2-118.1(b) of the Vehicle Code also provides that "hearings shall proceed in the court in the same manner as in other civil proceedings." 625 ILCS 5/2-118.1(b) (West 2000). Generally, in other civil proceedings, after a plaintiff voluntarily dismisses an action, he may commence a new action within one year or within the period of limitation, whichever is greater. See 735 ILCS 5/13-217 (West 2000). By its terms, section 13-217 of the Civil Code itself has broad scope, applying to "any * * * act * * * where the time for commencing an action is limited." 735 ILCS 5/13-217 (West 2000); see also Portwood v. Ford Motor Co.,
We note that whether section 13-217 of the Civil Code applies to a defendant's attempt to refile a section 2-118.1 petition challenging a summary suspension is a matter of first impression. However, the Illinois Appellate Court has previously addressed the timeliness of a petition filed pursuant to section 2-118.1. See People v. Holmes,
In 1996, the legislature addressed this issue by enacting Public Act 89-156 (Pub. Act 89-156, eff. January 1, 1996). This legislation added the-90 day filing period to section 2-118.1 of the Vehicle Code. The sponsor of the legislation, Representative Cross, explained the purpose of the legislation:
"[S]omeone had to pick a date and ninety days seemed to be a fair date. In trying to make sure we have police officers available, to try to make sure that we have police reports available, to make sure that witnesses are available, ninety days seemed to be a fair time frame." 89th Ill. Gen. Assem., House Proceedings, May 15, 1995, at 34 (statements of Representative Cross).
Representative Cross additionally stated:
"[F]or the person that waits and doesn't do anything and maybe waits a year or two years later, when we don't have any witnesses around or the police report is gone or the police officer is retired, then we run the risk of having someone have their summary suspension removed from their driver's license abstract and their DUI or their summary suspension is lifted." 89th Ill. Gen. Assem., House Proceedings, May 15, 1995, at 34-35 (statements of Representative Cross).
This legislative background, in conjunction with the relevant case law, reveals that the legislature intended the rescission proceedings to be resolved in an expeditious manner as to both the defendant filing his petition and the trial court conducting the rescission hearing. This legislative history further reveals a concern that, if defendants were allowed to wait more than 90 days before seeking to rescind their suspensions, both witnesses and evidence could be lost. Thus, it is apparent that the legislature was concerned that defendants could have their summary suspensions rescinded merely because they had delayed the proceedings.
Based on this legislative history, it is apparent that the legislature, in an effort to remedy a perceived imperfection in the earlier form of the law, added a requirement to section 2-118.1 that a rescission petition be filed within 90 days of notice of the summary suspension to ensure that the proceedings would be expeditious. The legislature explicitly expressed its concern that justice could be thwarted if a petitioner were allowed to prolong the proceedings by a year or more when evidence might be lost. Yet, if section 13-217 of the Civil Code were to apply to a rescission hearing so as to allow a defendant to refile a petition beyond the 90-day period prescribed by section 2-118.1 of the Vehicle Code, this is exactly what could happen. By voluntarily dismissing his petition and then not refiling it for potentially a year, a defendant could delay a rescission hearing for more than a year after receiving notice of his summary suspension. Accordingly, in order to give effect to the legislative intent in adding this remedial language, which we must (see Town of Benton,
Turning to the case at bar, the record reveals that the defendant received notice of his summary suspension prior to March 2, 2001. Although he filed a timely petition to rescind his summary suspension, he subsequently voluntarily dismissed his petition. The defendant then failed to refile this petition before the 90-day period mandated by section 2-118.1 of the Vehicle *713 Code expired. Accordingly, the trial court properly dismissed the defendant's petition as untimely.
For the foregoing reasons, the judgment of the circuit court of Du Page County is affirmed.
Affirmed.
BOWMAN, J., concurs.
Justice O'MALLEY, dissenting:
In my view, the majority fails to abide by the norms of statutory construction, which "forbid[] a court to canvass legislative history for evidence of legislative intent if the meaning of a provision can be determined from its text." Nevitt v. Langfelder,
The first recourse in statutory construction is the text of the statute. Nottage v. Jeka,
(1) "From reading section 2-118.1 * * * in its entirety * * * it is apparent that the legislature intended rescission hearings to be resolved in an expeditious manner." Op.274 Ill.Dec. at 618 ,791 N.E.2d at 710 .
(2) "These rescission proceedings are conducted expeditiously to ensure that the interests of the State and the rights of the defendant are protected." Op.274 Ill.Dec. at 618 ,791 N.E.2d at 710 .
(3) "By ensuring that the hearing is conducted promptly, the State can be assured that impaired drivers will be quickly removed from the road." Op.274 Ill.Dec. at 618 ,791 N.E.2d at 710 .
(4) "Moreover, through expeditious proceedings, the defendant is afforded due process rights and the opportunity to possibly regain his driving privileges." Op.274 Ill.Dec. at 619 ,791 N.E.2d at 711 .
If the majority were following the dictates of statutory construction, it would look only to the text of the statute in deriving these propositions. It does not so confine itself, however, but relies for all four propositions on the supreme court's assertions in Moore regarding the purpose of the summary suspension procedure. The issue in Moore was whether the results of a hearing on a petition to rescind the summary suspension of driving privileges could have preclusive effect on similar issues raised in a DUI proceeding. The propositions above are the majority's paraphrases of the following remarks in Moore:
(1) "These [summary license suspensions] * * * serve the salutary purpose of promptly removing impaired drivers from the road." Moore,138 Ill.2d at 166 ,149 Ill.Dec. 278 ,561 N.E.2d 648 .
(2) "To insure that the State has not violated any due process rights a motorist might have in retaining his or her driving privileges until convicted * * *, the legislature has also created a mechanism whereby the motorist may file a written petition to rescind the statutory *714 summary suspension of his or her license and receive a hearing." Moore,138 Ill.2d at 166-67 ,149 Ill.Dec. 278 ,561 N.E.2d 648 .
(3) "[T]he summary suspension hearing is not part of the criminal process but is, rather, merely an administrative device that is designed to remove impaired drivers from the road promptly." Moore,138 Ill.2d at 168 ,149 Ill.Dec. 278 ,561 N.E.2d 648 .
(4) "The legislature has specifically directed that the license suspension proceedings are to be swift and of limited scope." Moore,138 Ill.2d at 169 ,149 Ill.Dec. 278 ,561 N.E.2d 648 .
(5) If the findings of the court in summary suspension hearings are given preclusive effect in DUI proceedings, then "[t]he goal of conducting swift hearings for the sole purpose of determining whether a court has sufficient reason to rescind summary suspension of a motorist's driving privileges will be thwarted." Moore,138 Ill.2d at 169 ,149 Ill.Dec. 278 ,561 N.E.2d 648 .
Some of these remarks are merely descriptions of the statutory provisions (e.g., section 2-118.1 permits a driver to petition for rescission), while others are statements of legislative intent and purpose, glosses that go beyond the plain text of the statute (e.g., the implied consent law serves the "salutary purpose" of removing impaired drivers from the roadways).[1] While Moore rightly invoked legislative intent because the question it faced was not answered by the text of section 2-118.1, but required an understanding of the text's purpose, the question sub judice is answered decisively by a plain reading of section 2-118.1 and the savings provision of section 13-217.
The Code of Civil Procedure applies in all matters of procedure not controlled by other statutes. 735 ILCS 5/1-108(b) (West 2000). By its terms, section 13-217 of the Civil Code itself has broad scope, applying to "any * * * act * * * where the time for commencing an action is limited." 735 ILCS 5/13-217 (West 2000); see also Portwood,
It is clear from the comprehensive language of section 13-217 that the legislature intended the savings provision to govern the refiling of a petition for a judicial hearing under section 2-118.1(b) that the plaintiff had voluntarily dismissed. Section 2-118.1 contains neither its own savings provision nor any other indication that section 13-217 was not intended to so apply.
Nothing in the text of section 2-118.1 supports the majority's reading. Certainly, the time limits in section 2-118.1 will by force ensure that proceedings under the section are rapid. However, it simply is not apparent from the text of section 2-118.1 that the legislature was so insistent on expediency that it intended to foreclose the application of the savings provision. "There is no rule of construction which allows the court to declare that the legislature did not mean what the plain language of the statute imports." People v. Woodard,
However, even if it were appropriate to look beyond the text of section 2-118.1, the majority would still be in error. The short time periods of section 2-118.1 may evince a desire for expediency, but not expediency for expediency's sake. As Moore emphasizes, what the legislature sought in enacting the implied consent law was, first, the summary suspension of the driving privileges of an impaired driver, and, second, an expedited judicial determination of whether the suspension was warranted. Swiftness in these two functions serves the dual purposes of insuring public safety (People v. Hedeen,
Therefore, neither the text of the statute nor the intent behind it lends any support to the majority's position.
NOTES
Notes
[1] Moore cites no authority supporting its assertions regarding the legislature's purpose. I have found no such authority. For instance, it is not clear where in section 2-118.1 or elsewhere in the Vehicle Code the legislature has "specifically directed that the license suspension proceedings are to be swift and of limited scope." Moore,
